Samsa v. Heck (13 Ohio App. 2d 94, 1967)

Doyle, J.

This is a suit in equity originally filed in the Court of Common Pleas of Summit County, wherein the plaintiffs (David L. Samsa, Zoning Inspector for North-hampton Township; the Musical Arts Association [Cleveland Symphony Orchestra]; and others who were joined as parties plaintiff under Sections 519.24 and 2307.191, Revised Code) sought to enjoin the defendants, Ronald L. Heck and Jacqueline A. Heck, owners of land in Northampton Township, from allegedly violating a township zoning resolution by constructing an ‘ ‘ airstrip, airfield or landing strip” upon their property to be used in the operation of their own private airplane and the planes of their guests who may see fit to use it.

The defendants allege that they intend to establish a private landing strip for the purposes heretofore stated and to erect a garage “in which to house said aircraft,” and that the “airstrip will be constructed and operated in conformity with the rules and regulations promulgated by the Federal Aviation Administration for the regulation of such airstrips.” The defendants admit that “Northampton Township has passed a zoning resolution and * * * that said resolution prohibits the construction, establishment or maintenance of a private or commercial airport, airfield or airstrip at any place in Northampton Township; but * * * that such act or zoning resolution is inapplicable to these defendants and that said Township authorities and electorates are without power or authority to prohibit the establishment of defendants’ airstrip.”

Pursuant to trial on the issues joined, the Court of Common Pleas entered its decree denying the application for injunction.

The plaintiffs, having been denied the relief sought in the lower court, have now appealed to this court on questions of law and fact. We meet the issues here in a trial de novo.

Northampton Township, in which the land in question is situated, has adopted, under the provisions of Chapter 519, Revised Code, a comprehensive zoning resolution in which the lands in the unincorporated areas are divided into districts. The subject land is in a district designated for zoning purposes as R-l. Article 5 of the resolution in regulating the use of land in an R-l district is, in pertinent part, in the following terms.

“ ‘R-l’ District Regulations.

“Section A-l — Use Regulations: A building or premise within an ‘R-l’ Residence District shall be used only for the following purposes. * * *

“Section A-lh — Single Family Dwelling, Two-Family Dwelling:

* # #

“Section A-lc — Accessory buildings and uses customarily incident to any of the above uses and not involving the conduct of a business including:

“ (1) Quarters for hired help employed on the premises.

“ (2) Private garage but not to exceed space for four (4) vehicles.

“(3) Roadside stands, offering for sale only agricultural products which are produced on the premises.”

Article 2 of the resolution, under the heading “Definitions,” stipulates that, for the purpose of this resolution, the words accessory building or use mean a subordinate building or use customarily incident to, and located on the same lot occupied by the main building and use including swimming pools. (Emphasis ours.)

It is obvious, from the wording of the resolution, that we are not confronted with a restriction on the use of land, which sets forth prohibited uses, thus, possibly, making uses permissible which are not specifically prohibited, but that we do have a resolution worded in the affirmative as to uses permitted and, as a consequence, uses not expressly permitted are prohibited. In respect to resolutions of this character, we find no legal barrier and find them generally proper under the police power of the state and, in turn, under the authority of local subdivisions of the state granted zoning powers by the General Assembly of the state.

The entire zoning ordinance of Northampton Township divides the township territory of approximately 19-square miles into districts extending from purely residential districts to commercial districts, i. e., retail business, industrial, etc., with the character of the regulations of each made dependent upon the primary purposes for which each district is set apart. In the purely residential district, the prohibition of uses which may be made of the land and buildings, because of the affirmative wording of the resolution, appears to be based upon the idea that excluded uses would be inconsistent and incompatible with the general plan for maintaining a strictly residential area; not necessarily that they would be harmful or create nuisances.

This theory of zoning legislation, calling for the restriction of the use of land and buildings in specified districts of a township to residential purposes, finds support in the fact that, in the judgment of the township’s legislative body, the restriction is designed to promote the public health, safety and general welfare of the community.

Case law, in speaking of the right of courts to intervene in legislation of this character, may be found in many Ohio cases. In Curtiss v. Cleveland, 170 Ohio St. 127, at 130, Judge Taft observed:

u * * * in enacting such legislation, a legislative body is presumed to have decided that such legislation does bear such a real and substantial relation [to the public health, safety, morals or general welfare] and is not unreasonable or arbitrary. Whether such legislation bears such real and substantial relation and whether it is reasonable or arbitrary are questions committed in the first instance to the judgment and determination of the legislative body, and the decisions of such legislative body on those questions will not be disturbed unless they appear to be clearly erroneous. # * * [cases cited].”

Again, in Willott v. Beechwood, 175 Ohio St. 557, at 560, Judge O’Neill states:

“* * • The legislative, not the judicial, authority is charged with the duty of determining the wisdom of zoning regulations, and the judicial judgment is not to be substituted for the legislative judgment in any ease in which the issue or matter is fairly debatable.”

As we view the zoning legislation now before us, in the light of the facts established upon trial, we cannot, and do not, find that the judgment of this court should supersede that of the township officials; and we find the legislation under consideration falls well within constitutional limitations.

It is established, in principle at least, that restrictions on the use of lands for residence purposes only carry with them, as a matter of law, the right to certain accessory uses customarily incident to the principal use.

1 Yoldey, Zoning Law and Practice (3 Ed.) 183, Section 4-26, states this rule as follows:

“ * * * districts, as defined in a comprehensive zoning ordinance, cannot be confined exclusively to the principal uses authorized therein. Incidental uses have always been authorized where they are customary and do no violence to the plain intent of the statute or ordinance. * * #”

Again, in 1 Rathkopf, The Law of Zoning and Planning (3 Ed.) 23-3, Chapter 23, the rule is stated:

“The term ‘accessory uses’ as used by the courts may be predicated upon a specific provision relating to accessory uses found in the ordinance, or may be based upon the concept that whether or not the ordinance provides. for accessory uses, the litigated use is the one so customarily incidental to the principal use of the zoning [zoned] lot that it is, as a mater of law, a part of the permitted use.”

Under the zoning regulations before us, it is obvious that an “airstrip, airfield or landing strip” to be used in the operation of the private airplane of the property owners, and the planes of their guests, is not specifically permitted and is, therefore, prohibited, unless such a use of the land may be classified as a use customarily incident to a family dwelling house. As the regulation is drawn, as heretofore stated, only those things are permitted in the residence district for which provision is made, which ne >

The case of Yorkavitz v. Board of Township Trustees of Columbia Township, 166 Ohio St. 349, is claimed by the land owners as authority for their claimed right to the uses which they seek. The pertinent paragraph of the court’s syllabus in that case reads:

“2. Where the General Assembly delegates to township trustees police power to adopt zoning regulations for the unincorporated territory in their respective townships, and where the General Assembly, by the enactment of general laws prior to such delegation, declares a policy of promoting aviation and the establishment of airports, it is outside such police power delegated to the township trustees to enact zoning regulations prohibiting airports throughout the unincorporated territory of their respective townships by declaring that airports are nuisances per se, and such regulations are invalid. ’ ’

That pronouncement of the law of the case by the Supreme Court of Ohio is far removed from a declaration that the maintenance of a private airport is an accessory use to property legally zoned for family dwellings and that a ruling to the contrary fails to comply with constitutional limitations. The case at bar is wholly distinguishable from Yorkavitz v. Board of Township Trustees of Columbia Township, 166 Ohio St. 349; as, indeed, it is from other cited cases, including this court’s decision in Antonik v. Chamberlain, 81 Ohio App. 465.

A decree granting the injunction will be entered for the plaintiffs, appellants herein.

Judgment for appellants.

Brenneman, P. J., and Hunsicker, J., concur.